FECCA Submission to the Department of Immigration and Citizenship on the Review of the Citizenship Test 1. Introduction FECCA welcomes the Government s invitation to contribute to an independent review of the citizenship test, introduced by the previous government in November 2007. FECCA is the national peak body that promotes multiculturalism, community harmony and social justice. Our goal is to enrich and enhance Australian society through the fullest participation of all members of our community. We regard citizenship as a key to active participation in Australian society. We are committed to the eradication of all forms of racism and discrimination. In compiling this submission FECCA consulted with its members and the wider community. The submission addresses the terms of reference for the current review: the operation and content of the current citizenship test, applicant experience and impact of the test on applications. The submission draws evidence to support FECCA s following stance on the citizenship test: 1. FECCA remains strongly opposed to the concept of a formal citizenship test as it creates an unnecessary barrier to full participation and social inclusion; 2. Refugees and asylum seekers have traditionally taken up citizenship at the earliest possible opportunity. Creating the barrier of a test will see the numbers taking up citizenship decrease; FECCA Submission to the DIAC Citizenship Test Review May 30 2008 1
3. The current questions in the test are inappropriate and often subjective and give no indication or guarantee of the potential contribution the applicant may make to our society by knowing the answers to such questions as Which is the most popular sport? 4. The language complexity of the resource booklet which is beyond basic level English is discriminatory in that it puts citizenship out of reach for a basic user of English or those with limited education. 1.1 Citizenship Test FECCA remains unconvinced that the current citizenship test is a good indicator of a potential citizen s ability to make a positive contribution to Australia. FECCA holds that the prior citizenship process that did not require a formal test was successful in achieving its aims of encouraging migrants and humanitarian entrants to fully participate in Australian society. Countless migrants over the last four decades have taken citizenship and have proven to be exemplary, proud and loyal Australian citizens without the need to pass a test, such as the newly implemented citizenship test. FECCA supports the conclusions and recommendations made by Pillar and McNamara (2007) in their assessment of the resource booklet, Becoming an Australian Citizen, that the only way for the proposed test not to discriminate on the basis of proficiency and/or literacy in English would be to make the resource booklet and the test available in languages other than English, including talking books for non-literate citizenship applicants. 1 1.2 A Multicultural Framework With significant levels of immigration to Australia (143,000 migrants and 14,000 humanitarian entrants arriving in 2007), 2 FECCA regards citizenship within the broader framework of multiculturalism as essential to a socially cohesive, inclusive community. 1 Piller, I. & McNamara, T. (2007). Assessment of the language level of the 2007 draft resource booklet, Becoming and Australian Citizen. Unpublished report 2 DIAC. www.immi.gov.au FECCA Submission to the DIAC Citizenship Test Review May 30 2008 2
FECCA supports the Department of Immigration and Citizenship s purpose to enrich Australia through the well-managed entry and settlement of people. 3 To this end, FECCA recommends the development of accessible, flexibly delivered community education programs that promote consideration and understanding of Australian citizenship. To effectively meet the needs of our diverse community, these programs need to be aimed at both new arrivals and more established permanent residents who have yet to take up the opportunity to become Australian citizens. 1.3 Aims of Citizenship The aim of citizenship, as stated in the 2006 citizenship discussion paper, is to maximize a person s participation in society. 4 For this statement to become a reality, FECCA argues that measures must be taken to ensure that the citizenship process is fair and enabling, rather than exclusionary to aspiring Australian citizens, as we believe the current testing process to be. This submission addresses the key points outlined in the terms of reference as follows: 2. Content 2.1 Standard of English The discussion paper stated that a requirement of citizenship is that applicants possess a basic level of English language proficiency and that the test would serve as a benchmark for what this constitutes. 5 However, one of the criticisms of the test from linguistics and English language education researchers is that the level of English used requires considerably more competency than for basic English. Piller and McNamara (2007) note that the language level of the August 2007 draft resource booklet Becoming an Australian Citizen is complex and difficult on a range of measures of reading difficulty. It is certainly out of reach of a basic 3 http://www.immi.gov.au/about/department/who-we-are.htm 4 Australian Government ( 2007). Australian citizenship: Much more than a ceremony, p. 8. 5 Australian citizenship: much more than a ceremony; 2006;p.13 FECCA Submission to the DIAC Citizenship Test Review May 30 2008 3
user of English with limited education and /or limited familiarity with texts of this type. 6 The assessment was based on measurement of text difficulty with the following criteria: Shortness of text, guided by the CSWE levels used in the AMEP; immediate relevance and routine, guided by the European Language Portfolio devised by the Council of Europe; and lexical difficulty, guided by the Anglo-Saxon Index and using the software Web VP 7 to calculate the lexical difficulty of the text. The Australian Council of TESOL Association (ACTA) supports this assessment, noting that the resource booklet is extremely lengthy and written in language that is unnecessarily complex for early learners of English. This text demands much more than a functional use of English, which has been the stated purpose of the test. 8 ACTA puts the level of information included in the booklet as a higher standard than that currently taught in junior secondary schools, presenting a barrier to migrants from a non-english speaking background (NESB) and humanitarian entrants who have not been immersed in English language acquisition. They also note concerns that consultations with English as Second Language (ESL) educators and those with language expertise were not undertaken on the booklet to ensure the language demands of the test are reasonable. FECCA holds opinions from experts within the field in high regard and, if the resource booklet is to be continued, recommends that it be redeveloped in consultation with experts within the field of language and ESL. 2.2 Linking Language with Citizenship While FECCA supports an investment in English language tuition for migrants and humanitarian entrants, we agree with language experts who caution against 6 Piller, I. & McNamara, T. (2007). Assessment of the language level of the 2007 draft resource booklet, Becoming and Australian Citizen. Unpublished report. 7 Available: http://www.lextutor.ca/vp/eng/ 8 ACTA media release: 18 September, 2007 FECCA Submission to the DIAC Citizenship Test Review May 30 2008 4
linking citizenship with host language proficiency. 9 10 We acknowledge that English language competency contributes to migrants ability to actively participate in Australian life, however different levels of participation require different levels of language proficiency. The proficiency for tertiary level study, for example, differs from that of managing tasks within certain industries where such a level is not a requirement. We believe that those with limited English language skills are still able to fulfill their duties and obligations required for social participation such as voting, expressing opinions, and managing tasks in the workplace, despite limited knowledge of host language, and should not be denied citizenship on the grounds of limited English language competency. While FECCA welcomes and encourages initiatives for migrant Australians to acquire English language skills; it is important to recognise that in today s global marketplace Australia s multilingual workforce is an asset that provides a window of opportunity to engage at an international level with countries where languages other than English are spoken. In addition, workers who speak languages other than English enrich our workplaces and ensure more effective and responsive service delivery to our culturally and linguistically diverse Australian community. 2.3 Multiple Choice Questions FECCA believes that the current questions in the test are inappropriate as a means of testing a candidate s potential to contribute to Australian society as a loyal citizen. Moreover some of the questions have been criticised by our constituents as being subjective, for example what is Australia s most popular sport? The notion of a set of Australian values has also received much debate in terms of the difficulty in articulating a distinct set of Australian values, that many hold to be values that are shared with all liberal democracies. 11 3. Operation 9 Tim McNamara, Elana Shohamy (2008) Language tests and human rights International Journal of Applied Linguistics 18 (1), 89 95 doi:10.1111/j.1473-4192.2008.00191.x 10 ACTA Submission to: the Legal and Constitutional Affairs Committee Inquiry into the Australian Citizenship Amendment (Citizenship Testing) Bill 2007. 11 See Australian mosaic. Australians all: The values debate. Issue17 (November 2007). FECCA Submission to the DIAC Citizenship Test Review May 30 2008 5
While the citizenship test aims to assess English proficiency as a measure of societal participation and to educate applicants on Australia s history and values FECCA believes that a multiple choice test is not an effective measure of either language proficiency or citizenship education. 3.1. English Language Proficiency Language tests that are valid measures of English language proficiency require a considerable amount of research (IELTS and Cambridge ESOL for international students are examples). In comparison to these, the citizenship test, that consists of 20 multiple choice computer-generated questions, does not constitute a valid or reliable measure of language proficiency and therefore should not be paraded as such. In addition, the majority of people in Australia applying for citizenship are from Mainly-English-Speaking Background (MESB) countries. As at 31 March 2008 UK candidates represented the highest percentage per country of applicants (16.4%) who sat the test. 12 This raises the issue of the validity of the test in measuring English language proficiency and confirms in FECCA s view that the test has a discriminatory capacity towards specific groups of migrants who are automatically disadvantaged on the grounds of their native tongue. 3.2. Teaching Australian Values FECCA does not believe that such deep notions as values can be tested in the way that the citizenship test claims. Rather the test is merely evidence of a person s ability to recite a set of Australian values, not to necessarily commit to them. FECCA members are concerned that the test as it stands is a means of excluding particular groups of migrants and humanitarian entrants from NESB, with low literacy levels and those from oral cultures. Statistics on the success rates of citizenship indicate that there is a higher rate of passing the test from 12 The Department of Immigration and Citizenship s March 2008 Australian Citizenship Test Snapshot Report FECCA Submission to the DIAC Citizenship Test Review May 30 2008 6
English speaking migrants with groups experiencing the highest failure rates being from countries of civil unrest. Figures in the March 2008 Australian citizenship snapshot report indicate the highest failure rates to be people from Sudan (22.6 %) Afghanistan (17.4 %) and Iraq (17.4 %) that are areas of civil unrest. These figures confirm FECCA s concerns that the citizenship test is a barrier to refugee and humanitarian entrants, many of whom have little or no education and have suffered torture and trauma. Modes of operation that include an English only resource book, a written test and the use of ICT to administer the test immediately creates barriers for candidates who are unfamiliar with any of these modes. Administering a written test is more difficult for many candidates than the previous practice of an oral interview that provided opportunities for clarification of understanding, and is a process supported by FECCA. Citizenship and values are complex and abstract notions that, if included in the testing process, would be more effectively communicated through a migrant s native language. In this way concepts could be explored in more depth and early in the settlement process as a way of improving cultural competency. 3.3. Cost With the emphasis on language competency, the current citizenship test can be seen to be promoting a class divide whereby those who can afford to pay for tutelage are more likely to be successful. In addition, since its introduction the citizenship test has dramatically increased in cost, creating a further disincentive to those thinking of applying and putting citizenship out of reach of those already struggling financially. 4. Applicant s experience FECCA believes that the current test has created bias against particular groups of migrants. Concerns raised by our constituents are listed as follows: FECCA Submission to the DIAC Citizenship Test Review May 30 2008 7
New migrants working long hours to support their families cannot access English classes during working hours, and are ineligible for social welfare payments; 13 Parents with young children or carers of other family members have difficulty accessing classes unless others can pick up their caring responsibilities; Refugees and humanitarian entrants who have experienced torture, trauma and/or long periods of displacement due to war or civil unrest suffer post traumatic stress that makes learning another language very challenging; People who have experienced a very disrupted education in their country of origin, are illiterate in their own language, or who speak a language which is an oral language only are less likely to succeed this with this style of test; Older people have greater difficulty learning a new language, with many being unfamiliar with ICT; People living with disabilities find learning another language challenging; and People coming from countries of origin where English is not spoken or taught are at a disadvantage to those whose first language is English. People from African communities with a refugee background have felt they are at a disadvantage to gaining citizenship with a test that focuses on written English language skills as many have had little or no experience of a classroom learning environment. There has been concern expressed that the benefits that citizenship brings will now not be available to them. Without citizenship 13 O Loughlin, T. & Watson I. (1997). Loyalty is a One Way Street: NESB Immigrants and Long Term Unemployment. Australian Centre for Industrial Relations Research and Training. FECCA Submission to the DIAC Citizenship Test Review May 30 2008 8
employment opportunities are limited, particularly government work, that require citizenship, in addition to limitations placed on travel. 14 FECCA constituents have voiced concerns that the format of a written English test as an indicator of suitability for citizenship denies this conferrence to those who have difficulty learning a second language to the level of competency expected. For many migrants, in particular adults and seniors, acquiring a new language is difficult. Some migrants and refugees experience difficulty accessing language classes due to work and family commitments and lack of public transport. While FECCA agrees that teaching migrants ICT skills would enhance their ability to participate in Australian society, in reality there is a digital divide faced by migrants and refugees, many of whom are disadvantaged by lack of ready access to the Internet, having to rely on time-limited sessions at public libraries. FECCA believes that using a test as a learning platform for ICT will only add to the burden faced by candidates who lack knowledge of, and access to these technologies, and merely serves to act as a further disincentive to apply for citizenship. For many people, citizenship does provide the recognition that they belong. FECCA recommends exemptions for some groups that would allow people in these circumstances to still be able to successfully apply for citizenship. FECCA also recommends that any citizenship testing be made available in flexible formats to ensure accessibility for all potential citizens. If the citizenship test is to remain, FECCA advocates a reappraisal of the testing that provides simple, practical questions about aspects of Australia to assist new citizens with independence in their day to day living. Topics could include: a. Procedures for accessing services (e.g. How to renew a driver s license; paying bills); b. Recognition of uniforms and vehicles (e.g. Police, fire-fighters, paramedics); 14 See for example, FECCA interview with Akoc Akei Manheim, Director of the Sudanese Lost Boys Association of Australia. Available: http://www.fecca.org.au/snapshot_200708_02.cfm. FECCA Submission to the DIAC Citizenship Test Review May 30 2008 9
c. Recognition of Australian road signs, emergency phone numbers and messages, hospitals and police stations; d. Recognition of Australian currency and procedures for undertaking financial measures such as opening a bank account; e. Recognition of Australian documents (e.g. Medicare card); f. Situational scenarios (e.g. What to do if you are involved in a road accident or see a house on fire); g. Evacuation procedures for flooding or bushfires; and h. General questions or situations that CALD people would be in a position to answer. 4.1 Language Training Resources To reach the level of native speaking competency in a language requires around seven years of ESL tuition language. 15 Given this, the current provision and funding of English language tuition is clearly inadequate. FECCA acknowledges the Government s commitment in the 2008-2009 Budget to substantially increase funding to enhance the Adult Migrant Education Program that provides an excellent basis for further targeted investment in developing English language skills amongst those seeking to settle in Australia. Such an investment is essential if citizenship is to remain linked to English language proficiency. Programs that are flexible and meet differing needs and learning styles are also called for. FECCA calls for more research and consultation about how to boost the learning of English amongst people from diverse backgrounds to ensure that people from non-english speaking backgrounds are not disadvantaged by proposed citizenship tests. Impact on Applications 15 ACTA submission 2007 Australian Citizenship: Much more than a ceremony FECCA Submission to the DIAC Citizenship Test Review May 30 2008 10
FECCA is concerned that the test is deterring certain groups from applying, particularly humanitarian entrants and those from NESB. Failure rates for humanitarian and family reunion entrants remains unacceptably high with 18 percent of humanitarian program candidates and nine percent of family stream candidates failing the test 16. Understandably highest failure rates have been experienced by people from Iraq, Sudan and Afghanistan, where civil unrest has led to a high rate of illiteracy. Applicants from the humanitarian program also accounted for the highest number of test repeats. These figures serve to confirm FECCA s concerns that have been raised in its previous submissions and public statements, that the test is a barrier to attaining citizenship for these candidates. 17 FECCA believes that the full potential of refugees and humanitarian entrants to contribute to Australia is being hampered by the current testing process. Citizenship confers a sense of belonging and security that has been denied to refugees and humanitarian entrants before their arrival in Australia. As such, they are well able to appreciate the advantages of living in a society that espouses values of freedom and equality laid down in the government s values statement. FECCA recommends that all effort should be made to provide pathways for citizenship as early as possible. Delaying this is likely to contribute to the alienation and a disincentive to contribute to Australian society. FECCA is happy to discuss any of the issues raided in this submission. Voula Messimeri, FECCA Chair Phone: 0414 532 529 16 The Department of Immigration and Citizenship s January 2008 Australian Citizenship Test Snapshot Report 17 For example, Citizenship test not a fair go for refugees. Available: http://www.fecca.org.au/media/2007/media_2007036.pdf FECCA Submission to the DIAC Citizenship Test Review May 30 2008 11